公职律师制度问题探究

　　摘要

　　自1997年党的十五大提出实行“依法治国”以来，人民群众要求政府依法行政的呼声越来越高。随着我国经济社会的不断发展，各级政府在行政管理中涉及的法律问题也越来越多，因而政府需要“全方位、全过程”的法律服务。鉴于此，司法部于2002年10月下发了《关于开展公职律师试点工作意见》。多年来，我国在部分地区幵展了公职律师制度的试点工作，并取得了初步的成效，但同时也存在诸多问题。为此，笔者拟对公职律师制度这一问题进行初步研究，以期对我国公职律师制度的发展和完善有所裨益。

　　本文除引言和结语外，共分为五个部分。各部分的内容摘要如下：

　　第一部分，公职律师制度的内涵界定。公职律师是指具有律师资格，供职于行政机关或依法履行社会公共管理、服务职能的事业单位或者政府法律援助机构，经司法行政机关核准取得公职律师执业证，专门从事本机关、单位法律事务的公职人员。我国的公职律师。有公职性、身份的双重性、服务的无偿性和监督与管理的多重性等特点。

　　公职律师制度，则是指国家法律规定的有关公职律师的性质、任务、权利和义务、管理体制、组织和活动原则，以及如何为所在机关、单位提供法律服务的法律规范的总称。

　　第二部分，域外政府律师制度的考察与启示。在域外，美国、新加坡、新西兰、澳大利亚和我国香港等国家和地区已经形成了比较完善的政府律师制度，经过考察，可以看出域外的政府律师制度对我国具有以下几点启示：一是建立完善的法律制度保障政府律师依法履职；二是政府律师与其他法律职业有明显的界限；三是赋予政府律师执业独立性以保障法律服务的中立性；四是建立了律师、法官、检察官等法律职业共同体，实现不同法律职业之间的有序交流；五是政府律师要接受律师行业协会的监管与约束。

　　第三部分，我国公职律师制度的初步实践及存在的问题。1996年4月上海浦东新区26名公职律师首次亮相，迈出了我国公职律师制度建设的第一步。2002年10月，司法部专门下发《关于开展公职律师试点工作的意见》，拉开了我国公职律师制度试点工作的序幕，由此逐步形成了公职律师试点的浙江模式、广州模式、厦门模式、扬州模式和周村模式。我国公职律师制度试点在取得较大成绩的同时，也存在着试点工作缺乏法律保障、公职律师“官本位”倾向明显、公职律师部分职能与政府职能部门职责混同、公职律师履行职能缺乏独立性、主导性的管理模式始终未能形成和律师协会行业管理职能缺失等问题。

　　第四部分，我国全面推行公职律师制度的必要性禾卩可行性。我国全面推行公职律师制度的必要性主要体现在建设法治政府的必然要求、完善律师制度的内在需要、提高欠发达地区律师服务水平的迫切需要、推动我国诉讼制度改革的重要措施、以及实现社会和谐的现实需要等五个方面；可行性具体体现在律师队伍的发展提供了条件、现行的军队律师制度提供了参考依据、各地的试点工作提供了实践基础、域外完善的政府律师制度提供了借鉴等四个方面。

　　第五部分，我国全面推行公职律师制度的若干构想。在概括我国公职律师制度试点模式、分析试点存在的问题和借鉴域外政府律师制度有益经验的基础上，提出我国全面推行公职律师制度的若干构想，具体包括：一是修订律师法及制定公职律师管理条例；二是在政府法制部门附设公职律师工作机构；三是实行“三结合”的公职律师管理体制；四是采取措施促进东西部律师队伍的均衡发展；五是建立公职律师的评价与考核制度；六是建立公职律师的激励机制。

　　关键词：公职律师；制度；模式；试点；全面推行

　　ABSTRACT

　　Since 1997, the 15th Party Congress put forward the implementation of “rule oflaw”, the people's government administration according to law is more and more. AsChina's economic and social development, the legal issues at all levels of governmentinvolved in administrative management is also more and more, so the governmentneeds to “all-round, the whole process of' legal services. In view of this, the Ministryof justice in 2002 10 issued a ”about carrying out the pilot work opinions“ publiclawyer. More than ten years, our pilot work of the government lawyer system in someareas, and has achieved initial results, but there are still many problems. Therefore,the author intends to conduct a preliminary study of the issue of public lawyer system,to the development of our country's government lawyer system and improvement.

　　In addition to the introduction and conclusion, is divided into five parts. Thecontents of each part are as follows:

　　*The first part, define the connotation of the government lawyer system. Publiclawyer is a lawyer, served on the institution of administrative organs or to perform theservice function of social public management, or the government legal aid agencies,approval of the judicial administrative organ and obtained the practicing certificatepublic lawyers, public personnel specializing in this organ, legal affairs unit. China'sgovernment lawyer office, has dual nature of identity, service free of charge andsupervision and management of multiple features. Government lawyer system, isrefers to the principle of national laws and regulations, relevant public law nature ofthe task,the rights and obligations, management system, organization and activities,and in general how to the organs, units to provide legal service specification.

　　The second part, the investigation and Enlightenment of foreign governmentlawyer system. In the United States of America, Singapore, New Zealand foreign,China, Australia and Hongkong and other countries and regions has formed acomparatively perfect government lawyer system,through the investigation, we cansee the foreign government lawyer system of our country has the followingenlightenment: one is establishing law system perfect government lawyers to performtheir duties according to law; the two is the government lawyers have clearboundaries and other legal occupation; three is the neutral gives the governmentlawyers independence in order to protect the legal services; four is the establishmentof lawyers, judges, prosecutors and other legal occupation community, not orderlyexchange between legal occupation; five is government lawyers to accept thesupervision and constraint lawyer industry association.

　　The third part, the preliminary practice of China's government lawyer system andexisting problems. 1996 April Shanghai Pudong New Area 26 public lawyer debut,has taken the first step in building public lawyer system in china. In 2002 October, theMinistry of Justice issued a special Mon carrying out the pilot work of public opinionof counsel”, opened the prelude to the work of the pilot public lawyer system in China,thus gradually formed a government lawyer pilot Zhejiang mode, Guangzhou mode,Xiamen mode, Yangzhou mode and Zhoucun mode. China's government lawyersystem pilot in the great achievements made at the same time, there are also the lackof legal protection, the pilot work of public lawyers “official standard” tendency isobvious, the government lawyer part function and duty of government departments,public lawyers to perform their functions with the lack of independence, leadingmanagement pattern has not been formed and the bar association industrymanagement loss of function.

　　The fourth part, the necessity and feasibility of implementing the governmentlawyer system in china. Necessity of implementing public lawyer system in Chinamainly embodies the perfect lawyer system in the inevitable requirement, of thegovernment by law construction, improve the internal need less lawyer service leveldeveloped areas of urgent need, an important measure to promote the reform oflitigation system in our country, and realize the harmonious social reality needs fiveaspects concrete manifestation; feasibility in the development of lawyers to providethe conditions, the current military lawyer system provides the pilot work of reference,around four aspects and provides reference and provided a practical basis,extraterritorial improve government lawyer system.

　　The fifth part,some ideas of the foil implementation about the governmentlawyer system in china. Based on the summarization of pilot pattern, governmentlawyer system of China an analysis of the experimental problems and learn fromforeign government lawyer system useful experience, some suggestions were putforward,the full implementation of the government lawyer system in China including:

　　one is the law revision and public lawyer management regulations; two is agovernment lawyer working mechanism in the law government departments; three isa “public lawyer management system three combination”; four is the balanceddevelopment of measures to promote western lawyers; five is the establishment of theevaluation of the government lawyers and appraisal system; six is the establishment ofthe incentive mechanism of the government lawyers.

　　KEYWORDS: public law; system; mode; the full implementation of the pilot
 

　　目录

　　摘要

　　ABSTRACT

　　目录

　　引言

　　一、公职律师制度的内涵界定

　　（一）公职律师的概念和特征

　　1.公职律师的概念

　　2.公职律师与相关概念的辨析

　　3.公职律师的特征

　　（二）公职律师制度的概念

　　二、域外政府律师制度的考察与启示

　　（一）域外政府律师制度的考察

　　1.美国

　　2.新加坡

　　3.新西兰

　　4.澳大利亚

　　5.我国香港特别行政区

　　（二）域外政府律师制度的启示

　　三、我国公职律师制度的初步实践及存在的问题

　　（一）我国公职律师制度的初步实践

　　1.我国公职律师制度的产生

　　2.各地的实践及其特点分析

　　（二）我国公职律师制度在实践中产生的问题

　　1.公职律师制度的推行工作缺乏法律保障

　　2.公职律师部分职能与政府部门职责馄同

　　3.公职律师履行职能缺乏独立性

　　4.主导性的管理模式始终未能形成

　　5.律师协会行业管理职能缺失

　　四、我国全面推行公职律师制度的必要性和可行性

　　（-）我国全面推行公职律师制度的必要性

　　1.建设法治政府的必然要求

　　2.完善律师制度的内在需要

　　3.提高欠发达地区律师服务水平的迫切需要

　　4.推动我国诉讼制度改革的重要措施

　　5.实现社会和谐的现实需要

　　（二）我国全面推行公职律师制度的可行性

　　1.律师队伍的发展提供了必要条件

　　2.现行的军队律师制度提供了参考依据

　　3.各地的试点工作提供了实践基础

　　4.域外完善的政府律师制度提供了借鉴

　　五、我国全面推行公职律师制度的若干构想

　　（一）修订法律并规范公职律师的服务

　　（二）在政府法制部门附设公职律师工作机构

　　（三）实行“三结合”的公职律师管理体制

　　（四）采取措施促进东西部律师队伍的均衡发展

　　（五）建立公职律师的评价与考核制度

　　（六）建立公职律师的激励机制

　　结语

　　参考文献

　　致谢